Strategies for Improving

Graduation Outcomes:

Policy Considerations for Illinois

November 2009

Sara E. Wraight, J.D., with Jane R. Best, Ph.D.

Learning Point Associates

REL Midwest at Learning Point Associates

1120 East Diehl Road, Suite 200

Naperville, IL 60563-1486

866-730-6735

http://edlabs.ed.gov/RELmidwest/

REL Midwest at Learning Point Associates prepared this report in response to a request from the Illinois State Board

of Education. This report was adapted from a November 2008 version that was prepared with the Ohio Department

of Education in response to a request to provide policymakers and practitioners with more information around the

current state of high schools in Ohio. The primary concern was around dropout prevention and the strategies used to

intervene and reengage students who are at risk. This work was supported under contract ED-06-CO-0019 from the

U.S. Department of Education, Institute of Education Sciences. The content of the publication does not necessarily

reflect the views or policies of IES or the U.S. Department of Education nor does mention of trade names,

commercial products, or organizations imply endorsement by the U.S. government.

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Contents Page

Introduction ......................................................................................................................................1

Defining the Issue in Illinois ............................................................................................................1

The Illinois Dropout Prevention Summit .........................................................................................3

Nationwide Efforts to Improve Graduation Outcomes ....................................................................4

Preliminary Questions for Policymakers .........................................................................................9

Research-Based Recommendations ...............................................................................................10

Prevention ......................................................................................................................................10

Prevention in Illinois ................................................................................................................11

Prevention in Other States .......................................................................................................12

Intervention and Early Identification .............................................................................................13

Intervention and Early Identification in Illinois.......................................................................14

Intervention and Early Identification in Other States ..............................................................14

Reengagement ................................................................................................................................15

Reengagement in Illinois .........................................................................................................16

Reengagement in Other States .................................................................................................17

National Foundation and Organization Websites ..........................................................................18

Illinois Foundation and Organization Websites and Contact Information ....................................18

Selected Resources.........................................................................................................................20

Appendix. Geographic Data Displays of Illinois High School Dropout Data

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Introduction

Approximately 1.2 million U.S. students fail to graduate from high school with their class each

school year (America’s Promise Alliance, 2009). Illinois State Board of Education (2008)

statistics reveal that nearly 30,000 Illinois students dropped out of high school during the 2007–

08 school year.

An established body of research links graduation failure to increases in crime and poverty and

decreases in quality of life, physical and mental health, and earning potential. Using the

difference in the average earning potential of a high school dropout and a high school graduate, a

recent report by the Alliance for Excellent Education (2009b) estimates a loss of nearly $12

billion in total lifetime additional income for the Illinois students who failed to graduate with

their class in 2009 alone. In addition to the impact of these losses on the individuals who drop

out, there are larger societal costs resulting from losses in tax revenue and productivity and

increases in the demand for public assistance. These costs expand even further when the

expenses associated with crime and health care are taken into account.

States, districts, and communities are working to improve graduation rates by evaluating their

own policies, coordinating existing resources, and investigating what is working in their own

region and nationwide. Illinois is no exception either in the existence of a dropout problem or in

the intent to address it effectively. Illinois education stakeholders are actively looking for ways

to increase the graduation rate and to put more students on the path to high school completion,

postsecondary education, and workforce competitiveness.

The purpose of this publication is to provide a summary of existing antidropout programs and

initiatives as well as current research on best practices to inform better the education

policymakers who are working to improve graduation outcomes in Illinois.

Defining the Issue in Illinois

Who Is a Dropout Under Illinois Law?

Under Illinois law, a ―dropout‖ is ―any child enrolled in grades 1 through 12 whose name has

been removed from the district enrollment roster for any reason other than his death, extended

illness, graduation or completion of a program of studies and who has not transferred to another

public or private school‖ (105 ILCS 5/26-2a; Illinois General Assembly, n.d.-a). Illinois

compulsory attendance law mandates that all students between the ages of 7 and 17 attend school

with exceptions for students who are schooled privately, are unable to attend for medical reasons,

or have been suspended or expelled (105 ILCS 5/26-1; Illinois General Assembly, n.d.-b).

Parents or guardians are responsible for ensuring attendance of students (even those pupils who

are outside of the compulsory age range but who are enrolled in the Grades K–12 system). The

minimum age at which a student may drop out was raised from 16 to 17 effective in 2005.

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How Does Illinois Calculate Dropout and Graduation Rates?

Illinois must report yearly graduation rates for purposes of determining adequate yearly progress

(AYP) under the No Child Left Behind (NCLB) Act, the 2002 reauthorization of the Elementary

and Secondary Education Act (ESEA). Illinois calculates graduation rates by dividing the

number of graduates in a given year by the number of students who began in ninth grade four

year earlier, adjusted for student transfers and deaths. For purposes of determining who is a

graduate, Illinois only counts students who received a regular or advanced diploma, not a general

equivalency diploma (GED) or other equivalency certificate. Although students who leave

school to attend a GED program are not counted as graduates, they also are removed from the

cohort altogether (as if they transferred) and therefore do not factor in to the graduation rate

calculation.

Illinois also calculates dropout counts and dropout rates on an annual basis. The dropout count is

the number of students who drop out in a given year. Illinois calculates the dropout rate by

dividing the number of dropouts in Grades 9–12 by the fall enrollment for those grades.

What Do the Data Show About the Dropout Issue in Illinois?

To fully understand the dropout picture in Illinois, policymakers might consider the graduation

data within a larger context. In anticipation of the Illinois Dropout Summit, ISBE requested that

REL Midwest create geographic data displays using ISBE, U.S. Census, and National Center for

Education Statistics (NCES) data. The purpose of the analysis was to understand more about

factors associated with high school dropout as well as to identify schools that stand apart from

some of the typical patterns. With some exceptions, the incidence of dropping out appears to

correlate with certain social and demographic factors. In Illinois, as in other states, dropping out

is more prevalent in highly populated urban districts of larger metropolitan areas, though the

REL Midwest analysis revealed that dropout problems do exist in rural and suburban

communities as well. Also, as in national trends, the incidence of dropping out in Illinois seems

to correlate with poverty levels, with the poorest districts having the lowest graduation rates. In

addition, schools performing differently than expected given typical trends are distributed

throughout the state.

The map shown in Figure 1 displays 2007–08 statewide school dropout rates and district dropout

counts. Specifically, districts are colored based on the total number of dropouts. The darker

colors indicate larger number of dropout students. High schools are coded according to their

dropout rates. Dropout rates for the state were broken into quartiles. Schools that are in the top

quartile are presented as upward-facing green triangles and have the lowest dropout rates.

Schools that are in the bottom quartile are presented as downward-facing red triangles and have

the highest dropout rates. Finally, schools in the middle two quartiles are presented as black dots.

Additional geographic data displays prepared by REL Midwest along with detailed explanations

for each map may be found in the Appendix.

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Figure 1. 2007–08 Illinois High School Dropout Rates and District Dropout Counts

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The Illinois Dropout Prevention Summit

In November 2009, the Illinois Dropout Prevention Summit will be convened at Illinois State

University. The summit attendees will be organized by region and will work to create plans

leading to improved graduation outcomes. Supported primarily by a grant from the America’s

Promise Alliance, the summit will be the result of a collaborative planning effort by the Illinois

State Board of Education (ISBE), the Illinois Principals Association, the Illinois Business

Roundtable, Advance Illinois, Illinois State University, REL Midwest at Learning Point

Associates, Great Lakes West Comprehensive Center at Learning Point Associates, the Boeing

Company and State Farm Insurance Companies. A parallel summit for Illinois students was held

in October 2009.

Generally, strategies that might be implemented to improve graduation outcomes fall into three

key categories:

Prevention: Strategies that support student success at all levels and address the root

causes of dropping out of school

Intervention and early identification: Policies for enabling teachers, school leaders, and

community members to identify students at risk of dropping out and to intervene at

critical points when students fall off the path to high school graduation

Reengagement: Strategies to connect students who have dropped out or who are on the

verge of dropping out, with programs leading to high school completion and readiness for

postsecondary education and employment

A number of state-level policies and initiatives have been implemented for the purpose of

helping Illinois students achieve high school completion. In addition, several local programs

specifically aimed at addressing the dropout problem have been implemented in Illinois

communities. Detailed discussions of state and local policies, initiatives, and programs for

prevention, intervention and early identification, and reengagement appear in the sections that

follow related to each of these three focus areas.

Nationwide Efforts to Improve Graduation Outcomes

Uniform Graduation Rates

Graduation data can be reported in numerous ways, and states currently do so, often reporting

different rates to suit a particular purpose, audience, or compliance requirement. Following is a

brief breakdown of some of the more common methods for calculating graduation rates.

The leaver rate or departure classification index is calculated by dividing the number of

students who received standard high school diplomas by the total number of students who

have dropped out, graduated with a standard diploma, or graduated with other completion

credentials.

The four-year adjusted cohort rate calculates graduation rates by dividing the number of

graduates with a regular high school diploma in an adjusted cohort by the number in the

adjusted cohort. The adjusted cohort is the number of first-time ninth graders four years

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ago, plus students who transfer into the cohort and minus students who transfer out,

emigrate to another country, or who are deceased. Illinois’s current method of calculating

the graduation rate is similar to this rate. Key differences in Illinois’s method are as

follows: (1) Illinois’s practice of counting any student who graduates in a given school

year as a graduate, regardless of how long it took that student to graduate (and adjusts the

total cohort to include these students as well), and (2) Illinois’s removal of GED students

from the total cohort.

The cumulative promotion index (CPI) is the calculation method used by Christopher

Swanson in the Editorial Projects in Education Cities in Crisis reports (Swanson 2008,

2009). The CPI ―captures the four key steps a student must take in order to graduate:

three grade-to-grade promotions (9 to 10, 10 to 11, and 11 to 12) and ultimately earning a

diploma (grade 12 to graduation)‖ (Swanson, 2009, p. 10). Each of these four steps is

represented in the formula by a ratio. For example, the 9 to 10 promotion is calculated by

dividing the number of 10th-grade students in the fall by the number of ninth-grade

students the previous fall. The four ratios are then multiplied together to generate the CPI

graduation rate.

The National Center for Education Statistics (NCES) currently reports graduation rates

for all states and districts using what they term the averaged freshman graduation rate

(AFGR). The AFGR is calculated by dividing the number of regular diploma recipients in

a given year by the average of the membership in Grades 8, 9, and 10 that had been

reported five, four, and three years earlier. Because AFGR data are available for most

states and districts, it is a useful means of comparing graduation rates across different

locations. Variation still exists, however, in how states and localities define and approach

the individual components that are used to determine the AFGR.

States and districts also may report dropout rates—estimates of the percentage of students who

drop out of school. Dropout rates can be calculated in different ways as well.

The event dropout rate is the percentage of students exiting high school without a

diploma in a given year. Illinois’s method of calculating dropout rates fits into this

category.

The status dropout rate measures the percentage of individuals 16–24 years old who are

not in school and have no diploma.

The cohort dropout rate or longitudinal dropout rate measures the percentage of students

who drop out within a cohort of students that is followed over time (e.g., the percentage

of students who started high school in a given year and, as of four years later, have

dropped out of school).

NCLB requires that state accountability be measured in part by the ―graduation rate,‖ defined as

the percentage of students graduating in ―the standard number of years‖ with a regular diploma

(one aligned with state standards and not a GED). Absent detailed regulatory guidance,

graduation rates have been calculated numerous ways, using a variety of methods and

assumptions. In 2005, the National Governors Association (NGA) made a 50-state compact to

adopt a common cohort formula for all states to use in calculating graduation rates by 2012.

Federal regulations issued in late 2008 clarify what is meant by ―graduation rate‖ under NCLB

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and require states to begin calculating graduation rates using an adjusted cohort formula similar

to the rate established by the NGA compact. States must begin reporting the adjusted cohort

formula for the 2010–11 school year, and this formula will be used for purposes of determining

AYP under NCLB for the 2011–12 school year. U.S. Secretary of Education Arne Duncan has

indicated that he supports these graduation rate regulations (see U.S. Department of Education,

2009b).

One issue related to the federal reporting requirements is how to account for students who take

longer than four years to graduate from high school. The key indicators for graduation rates

factor in students who graduate in the standard number of years; schools, districts, and states

typically are not able to include students who drop out and later reenter and successfully

graduate. Under the current regulations, however, states may report a separate ―extended year‖

graduation rate in addition to the main indicator. This other rate can include students who take

longer than four years to graduate. The extended rate may be considered as part of the

calculations for determining AYP.

State Efforts to Improve Graduation Rates

Several states have passed laws or otherwise adopted policies for deterring students from

dropping out. These efforts range from isolated policy changes to large-scale comprehensive

efforts. Many of the programs and initiatives that were developed and supported as a result of

these laws and policies connect to the focus areas of prevention, intervention and early

identification, and reengagement. Examples may provide insight for Illinois policymakers

interested in finding ways to address the dropout issue. Some recent examples are provided in

Table 1. Although many of these state-level policies have yet to be fully tested, some states

report that the graduation picture is changing as a result of their legislation and initiatives.

Table 1. Recent Policy Activity Related to Improving Graduation Rates1

State Recent Policy Activity

Alabama

SB 334 (2009) increases the compulsory age of attendance to 17, creates a

Dropout Prevention and Recovery Fund, directs the Alabama Department of

Education to establish intervention procedures for schools with lower graduation

rates, and requires data collection on key measures related to high school

completion.

Arkansas

HB 1956 (2009) establishes the Project Graduation Commission to research and

recommend dropout prevention strategies and examine the economic impact of

graduation rates. SB 918 (2009) establishes the Smart Core Incentive Funding

Program to provide support to assist students in completing the state’s Smart Core

curriculum.

1 The information in Table 1 was obtained by cross-referencing the bill-tracking databases on several websites: the

National Conference of State Legislatures, the Education Commission of the States, and state legislature databases.

The information was accessed in August 2009.

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State Recent Policy Activity

Colorado

HB 1423 (2009) establishes the Office of Dropout Prevention and Student

Re-engagement and creates the Student Re-engagement Grant Program. HB 1280

(2009) establishes a National Guard Youth ChalleNGe Corps program in the state.

SB 90 (2009) establishes a state advisory council for parent involvement in

education in the Colorado Department of Education to focus on several issues,

including dropout prevention. SB 123 (2009) establishes a student support and

wellness program with several goals, including improving attendance and

graduation rates. In addition, HB 08-1370 (2008) establishes the School

Counselor Corps Grant Program for the purpose of reducing dropout rates by

providing funding for school counselors in the secondary grades, and HB 1336

(2008) establishes truancy reporting and attendance monitoring procedures.

Illinois

SB 1796 (2009) forms the Illinois Hope and Opportunity Pathways through

Education Program with the goal of reengaging dropouts in programs to help

them complete high school. A 2007 bill (HJR 87) establishes the Task Force on

Re-Enrolling Students Who Dropped Out of School.

Indiana

HB 1343 (2009) creates a Dropout Prevention Fund to support programs that

identify students at risk of dropping out. HB 1419 (2009) mandates that school

corporations establish plans for improving discipline systems and behavior, which

include alternatives to student suspension or expulsion and encourage parent

involvement.

Louisiana

SB 316 (2009) establishes a state initiative aimed increasing graduation rates and

preparing high school students for postsecondary education and work. HB 731

(2009) establishes legal responsibilities and consequences for students, parents,

and legal custodians related to student truancy. In addition, HB 1091 (2008)

mandates exit interviews and parental consent for students who drop out.

Maine SB 528 (2009) establishes the Center of Excellence for At-Risk Students. This

center will provide instruction and support to students at risk of dropping out.

Maryland

SB 264 (2008) requires local education agencies to provide information about

alternative education and high school equivalency programs to individuals who

have dropped out and have not yet earned a high school diploma or certificate. A

2006 bill (SB 59) mandates the use of a cohort formula for calculating graduation

rates.

Massachusetts SB 2766 (2008) creates a prevention and dropout recovery commission to identify

best practices and evaluate existing programs and implements a system to collect

longitudinal data.

Mississippi Mississippi Board of Education Policy 3105 (2007) establishes a comprehensive

Dropout Prevention Plan in connection with specific goals for increasing the

graduation rate and decreasing the dropout and truancy rates.

Missouri SB 291 (2009) establishes the Persistence to Graduation Fund, which funds

districts in implementing dropout prevention programs.

Nevada

SB 77 (2009) permits school district boards to establish mentoring programs

aimed at supporting student engagement, middle to high school transition, and

school completion. AB 487 (2009) mandates district plans and supports for

students transitioning from elementary school to middle school or junior high

school.

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State Recent Policy Activity

North

Carolina

HB 187 (2009) mandates that local school boards implement policies for

supporting pregnant students and students who are parents and helping them to

remain enrolled in and complete school. It also includes several recommendations

for board policies related to the support of students in middle to high school

transition, the reduction or the amounts of student suspensions and expulsions,

and the support of suspended students.

Oklahoma HB 1050 (2009) establishes a mentoring program designed to help at-risk students

graduate.

Texas

HB 2237 (2007) requires a study of best practices to prevent dropping out,

authorizes funding for student club activities for students at risk of dropping out

and mandates that districts with high dropout rates develop detailed dropout

prevention strategy plans.

Utah

R277-702 (2009) allows students who have not completed school or passed the

General Educational Development exam to return to their school prior to their

class’s graduation in order to work to complete the requirements for a traditional

high school diploma.

Vermont HB 405 (2009) supports research on high school improvement and the

implementation of a longitudinal data system.

Virginia HB 259 (2009) establishes recordkeeping and follow-up procedures related to

student transfers. HB 1794 (2009) requires that students cannot be suspended

because of truancy alone.

Wyoming SB 60 (2009) establishes a National Guard Youth ChalleNGe program in the

state.

Federal Steps

The federal government supports state and local efforts to address the dropout issue, primarily

through the funding of programs and research. In the past, the U.S. Department of Education has

awarded grants to state and local education agencies for dropout prevention and reengagement

programs, though funds have not been appropriated for this program since fiscal year 2006. The

Department of Education also supports the National Dropout Prevention Center/Network and the

National Dropout Prevention Center for Students with Disabilities, both of which disseminate

research and resources related to dropout prevention practices. The Institute of Education

Sciences (IES) sponsors research on the dropout issue through a variety of programs and

projects. The recent passage of the American Recovery and Reinvestment Act (ARRA) will

provide funding opportunities for a range of education programs, some of which will likely relate

to the goal of improving graduation outcomes. In addition, Congress is considering a number of

legislative proposals addressing the dropout issue, some of which are tied to the reauthorization

of ESEA.

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Preliminary Questions for Policymakers

The following questions address issues that Illinois policymakers might consider when working

to improve graduation outcomes in their state.2

1. Why are students in your school, district, community, or state dropping out of school?

Surveys and interviews of students who have dropped out reveal a number of reasons for

their decisions, ranging from boredom to course failure to social and economic pulls. The

student reported reasons can differ from those reported by parents and educators.

Conducting a similar inquiry with dropouts in your region could provide insight into how

to keep students from leaving the system and reengage those students who already have

left.

2. What is the extent of the dropout crisis in your school, district, community, or state?

Knowing the nature of the problem is a critical first step in addressing it. Policymakers

seeking to understand their particular issues might consider not only the current

graduation and dropout rates but also how those rates have changed over time.

3. Why does lowering the dropout rate matter?

What are the goals underlying antidropout policies? To increase the number of students

earning a high school diploma? To help students become educated, productive citizens?

Both?

4. What is the basis for this concern?

What parts of the dropout problem most concern you? Is it the size of the problem now or

trends that point to more serious issues to come? Are you more concerned with disparities

of race, ethnicity, or class than with the overall problem? What if you were able to

decrease the dropout rate but disproportions remained?

5. What types of programs could be supported?

What if a program focused resources on students on the cusp of succeeding, diverting

resources from those students who have the most severe problems? What about using

financial incentives such as gift certificates or even cash to keep students in school? What

might be the consequences of using rule-based, punitive measures to address the dropout

issue?

6. Do resources exist that can be incorporated into new prevention, intervention, or

reengagement strategies?

Does your community have resources that can be reorganized or repurposed to address

the dropout issue? These resources could be individuals, funds, programs, technology, or

2 Many of these questions were derived from questions posed in the briefing report titled Dropout Prevention:

Strategies for Improving High School Graduation Rates, prepared by the Center for Child and Family Policy (2008)

at Duke University. The report was published in connection with the North Carolina Family Impact Seminar on high

school dropout.

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even information. For example, what sorts of data do you already have that might support

an early warning system to identify students at risk of dropping out?

Research-Based Recommendations

In 2008, IES published a report detailing research-based recommendations for addressing the

dropout issue (Dynarski et al., 2008). The following are the key recommendations included in

the report:

1. Utilize data systems that support a realistic diagnosis of the number of students who drop

out and that help identify individual students at high risk of dropping out.

2. Assign adult advocates to students at risk of dropping out.

3. Provide academic support and enrichment to improve academic performance.

4. Implement programs to improve students’ classroom behavior and social skills.

5. Personalize the learning environment and instructional process.

6. Provide rigorous and relevant instruction to better engage students in learning and

provide the skills needed to graduate and to serve them after they leave school.

These recommendations are closely aligned with the focus areas of prevention

(recommendations 3–6) and intervention and early identification (recommendations 1 and 2).

The IES report elaborates further on each recommendation and includes a checklist of steps for

carrying them out. Research reviewed by IES will be discussed in the sections on prevention,

intervention and early identification, and reengagement that follow.

Prevention

Prevention strategies support student success at all levels and address the root causes of dropping

out of school. Because prevention strategies are designed to keep students on track and address

problems before they become serious obstacles, they are often considered the cornerstone of

antidropout initiatives. The term ―dropout prevention‖ is often a catchall for any strategy aimed

at addressing the dropout issue, including targeted interventions and reengagement efforts. For

the purposes of this policy brief, prevention encompasses programs and services delivered to the

general population of students within an educational setting. It will cover schoolwide and

systemwide initiatives for middle and high school students as well as prevention strategies that

may be implemented in prekindergarten and the early grades. While early education strategies

may seem removed from the issue of high school graduation, they are of particular concern to

states because research has shown that an investment in quality early education can have

dramatic positive long-term outcomes.

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State and local education leaders, in Illinois and in other states, have initiated a number of

programs aimed at setting more students on trajectories for future academic success, including

high school graduation. Some such efforts include the following:

Local, regional, and state councils or task forces that strive to streamline and integrate the

delivery of education resources across schools and grade levels (e.g., K–12, P–16, or P–

20 councils).

Early childhood education programs that promote student success.

Tiered intervention models that monitor student progress and provide increasingly intense

interventions targeting students’ needs (e.g., response to intervention, or RTI).

Schoolwide efforts to make instruction more personalized, relevant, and engaging, such

as ―schools within schools,‖ career-related education and advising, service learning

programs, and dual-enrollment programs.

Programs that provide special supports at critical, transitional grade levels such as ninth-

grade academies.

Researchers have made strides in identifying and developing effective prevention strategies.

Longitudinal studies have demonstrated the long-term benefits of quality early childhood

education and care. Computer simulations based on this research have projected dramatic

impacts on graduation rates when systematic and sustained interventions begin in early

childhood and continue through adolescence. In addition, What Works Clearinghouse (WWC),

an IES-funded research center, has rigorously evaluated the existing data and research on

dropout prevention programs, identifying model programs with a proven positive impact. This

growing body of research has been considered by policymakers and practitioners working to

support students and effectively deliver resources from prekindergarten through graduation.

Prevention in Illinois

Because the prevention category includes services delivered to the general population of students

that aim to keep all students on track from early childhood on, much of the work of the state

education system therefore falls into this overarching set of strategies.

Illinois’s ongoing work around RTI provides an example of a state-level prevention strategy.

Illinois has a comprehensive statewide RTI plan and requires that districts create and implement

their own RTI plans. The RTI plans provide a framework for supporting students academically

through frequent assessment and the use of interventions tailored to student needs. The state also

encourages an RTI support system for student behavior. Positive Behavior Intervention and

Supports (PBIS) is a nationally recognized approach to addressing behavior issues through tiered

supports, and Illinois is a leader in promoting PBIS.

In addition, Illinois’s state funding programs for preschool connect to the prevention strategy of

comprehensive early childhood education.

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State and local agencies have implemented prevention programs and initiatives in a number of

Illinois communities, funded by both public and private initiatives. The following are examples

of prevention efforts taking place throughout Illinois.

The Connections Project at Illinois State University works with ISBE to implement High

Schools That Work (HSTW) pilot programs in the state. HSTW is a national school-

improvement initiative of the Southern Regional Education Board. The model aims to

help students graduate from high school with the skills required for postsecondary

success. Key focus areas of the program are strengthening the middle and high school

curriculum and improving the quality of career and technical education.

Voices of Youth in Chicago Education (VOYCE) is a youth-led consortium of

community organizations from several Chicago neighborhoods concerned with

improving graduation rates and college access for Chicago Public Schools students. In

2008, VOYCE published a student-researched report on the dropout issue that included

policy recommendations.

Union Park Schools is working with the Talent Development High Schools Program to

open a Talent Development High School in Chicago’s West Garfield Park neighborhood

in fall of 2009. The school-improvement model is designed to reform large high schools

and incorporates prevention strategies related to both the school climate and the

curriculum.

Prevention in Other States

Sample State and Local Programs. Dropout-prevention strategies have taken a variety of forms

in various states. The following is a brief description of notable programs and initiatives.

Career academies are schools within schools that offer a career-themed curriculum. The

academies work to provide students with classroom coursework as well as work

experiences in the community that connect to a particular field. In evaluating existing

research, WWC determined that Career Academies can have positive effects on staying

and progressing in school.

WWC also showed Talent Development High Schools to have potentially positive effects

on progressing in school. The Johns Hopkins University’s Talent Development High

Schools Program is a high school reform model developed in Baltimore and has

expanded to schools in 15 states, including Illinois (the school in Chicago’s West

Garfield Park neighborhood described above). The model incorporates a number of

schoolwide strategies aimed at improving student outcomes.

The Harlem Children’s Zone project, a community-based, multilayered initiative to

increase opportunities for Harlem youth, is composed of several programs that target

every stage on the birth-to-career spectrum. One innovative program, Baby College,

provides parenting classes for new and expecting parents in an effort to create positive

learning environments that foster school readiness and literacy development from day

one.

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Federal Initiatives Related to Prevention. In accordance with the goal of giving all children a

solid foundation for future learning, a number of federal initiatives direct resources toward

prekindergarten and the early grades. Federal programs such as Head Start and Reading First

support early learning, school readiness, and literacy. In addition, under the Individuals with

Disabilities Education Improvement Act of 2004 (IDEA) and the IDEA regulations, districts may

use up to 15 percent of federal special education funds to support early intervention services such

as RTI in the general education setting.

Intervention and Early Identification

Intervention and early identification strategies combine to enable educators and community

members to intervene at critical points when students fall off the path to high school graduation.

Although policymakers and practitioners working to curb dropping out are concerned with

promoting student success by establishing a foundation for success and keeping students engaged

from the early grades, they also might consider those students with pervasive issues and those

with problems that manifest later in their schooling. Effective intervention and early

identification initiatives can put struggling students on the path to on-time graduation and

postsecondary education and employment. Therefore, states that are developing and

implementing comprehensive antidropout initiatives typically support such strategies.

State and local agencies have initiated a number of intervention and early identification programs

for elementary, middle, and high schools. These programs complement one another, with early

identification initiatives using various types of data to identify students at risk of dropping out

and intervention programs targeting those students who are identified as being at risk. Such

efforts include the following:

The use of data systems focused on academic predictors to identify students at high risk

of dropping out (known as early warning data, academic risk factors, or on-track

measures) in order to inform decisions

The use of other types of student data, such as socioeconomic status and parent education

level, to identify at-risk students

Tutoring, mentoring, or advocacy programs that provide targeted support and enrichment

Researchers, policymakers, and practitioners have sought effective ways to collect and use data

to inform decision making. From these efforts has emerged a specific focus on how academic

data such as standardized test scores can be used to identify students at risk of dropping out.

Recent studies have identified academic predictors of high school graduation in tests

administered as early as third grade.

Research suggests that targeted intervention programs can have a positive effect on student

achievement and school completion. WWC has evaluated the evidence for several dropout

programs and identified effective intervention programs.

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Intervention and Early Identification in Illinois

Illinois has several policies aimed at addressing the dropout issue through intervention and early

identification. Illinois was awarded a federal State Longitudinal Data System grant for fiscal year

2009. Recently passed state legislation governs the goals and administration of the award. The

Illinois law specifies that the system will coordinate various state agencies involved in early

childhood through higher education. Such a coordinated effort may allow the early identification

of students at risk of dropping out as well as the evaluation of the effectiveness of educational

interventions designed to keep students on track.

Intervention and early identification strategies are used in communities, districts, and schools

throughout the state. Programs and initiatives are implemented at the state and local level and are

funded by both public and private initiatives. The following are examples of Illinois intervention

and early identification programs and initiatives.

The Consortium on Chicago School Research (CCSR) is a university-affiliated research

organization focused on researching educational issues in the city of Chicago. Some of

CCSR’s work focuses on the development and use of indicators of whether students are

on track to graduate.

The nationally recognized Big Brothers Big Sisters program has 18 agency offices

throughout the state of Illinois. The program pairs adult mentors with at-risk youth.

Intervention and Early Identification in Other States

Intervention and early identification strategies around the country have taken a variety of forms.

What follows is a brief description of notable programs and initiatives.

Achievement for Latinos through Academic Success (ALAS) is a program shown by

WWC to have potentially positive effects on both staying in school and progressing in

school. The program targets middle school students and is designed to address a wide

spectrum of issues that can affect dropping out, including student, school, family, and

community factors. Students in the program are assigned counselors who collaborate with

families and teachers and monitor student performance. In addition, students and parents

receive training in problem-solving skills.

Check & Connect is a research-based program that offers degrees of intervention, ranging

from basic (for all students covered by the program) to intensive. One basic intervention

is instruction in cognitive-behavioral problem-solving strategies. Intensive interventions

include one-on-one mentoring and collaboration with the school administrators to find

personal solutions for individual students. The program also incorporates family

outreach, ongoing mentoring, and the monitoring of student data, including attendance

data. WWC validated research and evaluation of the program as it is has been

implemented in a large urban district in Minnesota, and it concluded that the program has

positive effects on staying in school and potentially positive effects on progressing in

school.

High School Redirection is an alternative high school program for at-risk students. It

focuses on developing basic skills, including literacy, and it features a small-school

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setting in which teachers act as both instructors and mentors. WWC determined that High

School Redirection can have positive effects on progressing in school but mixed effects

on staying in school.

Twelve Together is a mentoring and peer-support program for students in middle school

and early high school. The program spans one year and offers help with homework

provided by college students, afterschool discussion groups, and college visitation trips.

WWC found that it can have positive effects on staying in school.

Federal Initiatives Related to Intervention and Early Identification. The federal government

has demonstrated a commitment to helping states develop and strengthen their longitudinal data

systems. The Statewide Longitudinal Grant Program (of which Illinois was a grantee for fiscal

year 2009) has been awarding grants of up to $9 million. Since the first round of awards in 2005,

41 states and the District of Columbia have received at least one grant. In addition, one of

ARRA’s ―four assurances‖ (which will impact funding decisions under the various grant

programs) is ―establish and use pre-K through college and career data systems to track progress

and foster continuous improvement‖ (U.S. Department of Education, 2009a). Another assurance,

to ―provid[e] intensive support and effective interventions for the lowest-performing schools‖

connects to the intervention aspect of this strategy.

Reengagement

Reengagement, also referred to as reentry, reconnection, retention, and recovery, encompasses

strategies for helping individuals who have dropped out of school reconnect with the education

system. Although any comprehensive plan to address the dropout issue hinges on efforts to

prevent students from withdrawing from the system, such a plan also can include programs that

work to bring back students who do leave. For those who drop out, the right reengagement

initiatives can facilitate a life-changing turnaround. States confronting the dropout issue might

therefore strive to develop, implement, and support effective reengagement strategies.

State and local agencies have instituted a range of efforts to help disengaged students achieve

high school completion and go on to postsecondary education and employment. Such efforts

include the following:

Adult career and technical education programs

High school equivalency test programs to prepare students for the GED

Computer-based instruction, such as distance learning programs

In-school programs that provide academic or social and emotional support for students

who reenroll after dropping out

Programs that grant credit toward high school completion for mastery of skills and

content as opposed to actual hours of instruction (―seat time‖)

Alternative or ―second-chance‖ schools

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Rule-based initiatives that deter students from dropping out or encourage out-of-school

students to return to school through punitive measures, such as enforcing truancy laws or

removing driving privileges

Ideally, reengagement programs work by helping out-of-school youth reenroll in school,

graduate, and earn a high school diploma. A number of students are unable to take this traditional

path to high school completion, and policymakers can work to ensure that alternative pathways

are available. Affordable and flexible options can be created for individuals who are parents,

who must work during the day, or who simply cannot learn in a traditional classroom

environment.

There has been a growing interest among researchers and educators in identifying successful

reengagement programs. Reengagement efforts are among the antidropout programs that WWC

evaluated. Programs that offer participants job training and social supports in addition to high

school coursework have had a demonstrated effect on completion. An increasing number of

reengagement programs are incorporating technology, such as online learning programs, which

allow for even more flexibility and individualization.

Reengagement in Illinois

Illinois has taken recent steps towards improving graduation outcomes through reengagement

strategies. In 2004, a series of bills related to promoting high school completion were enacted.

The laws promoted better recordkeeping related to students who leave school and clarified the

situations under which a school or district may deny reenrollment to a student, adding

protections to a student’s right to reenroll.

A 2005 legislative resolution created the Illinois Task Force on Re-enrolling Students Who

Dropped Out of School. The task force was charged with researching possible reengagement

approaches and developing recommendations. In 2008, the task force published its report that

recommended additional funding opportunities for reengagement programs. Stemming from the

task force’s recommendations, legislation effective July of 2009 established the Illinois Hope

and Opportunity Pathways through Education (IHOPE) Program. The goal of the grant program

is to ―develop a comprehensive system in this State to re‑enroll significant numbers of high

school dropouts in programs that will enable them to earn their high school diploma‖ (105 ILCS

5/2-3.66b; Illinois General Assembly, n.d.-c). The grant program is administered in addition to

the existing Truants’ Alternative and Optional Education Program (TAOEP), established to

award grants for purposes of funding programs that support students who are chronically absent

or have left school altogether.

Reengagement strategies have been used within a number of Illinois communities. Programs and

initiatives are implemented at the state and local level and are funded by both public and private

initiatives. The following are examples of Illinois reengagement programs and initiatives.

Job Corps is a federally funded program operating more than 120 residential alternative

schools enrolling more than 60,000 youth ages 16–24. The program provides vocational

training as well as opportunities for participants to earn a diploma or a GED. WWC

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determined that Job Corps programs can have positive effects on completing school.

Illinois has Job Corps sites in Chicago, Golconda, and Joliet.

The Lincoln Challenge Academy is the Illinois branch of the National Guard Youth

ChalleNGe Program. The program, permanently authorized by Congress at 60 percent

federal funding, is an alternative education program for youth (ages 16–18) who have

dropped out of high school. The program offers residential and nonresidential phases, has

a military academy structure, and offers academic classes. Many participants are able to

earn a GED during the residential phase. The national program started in 10 states and

has expanded to 29 states and Puerto Rico.

The Illinois Virtual School (IVS) offers a range of online courses in Grades 5–12.

Operated by a partnership of Regional Offices of Education and funded by a grant from

the state, IVS courses may be accessed by a variety of individuals including formerly out-

of-school students. Such students may take and earn credits toward a diploma, though

credit is granted by a partner school, not IVS.

Reengagement in Other States

Sample State and Local Programs. Reengagement strategies implemented in other states have

taken a variety of forms. What follows is a brief description of notable programs and initiatives.

In 2004, Philadelphia formed a citywide collaborative, Project U-Turn, to combat the

city’s dropout crisis. In 2008, the city opened a ―Reengagement Center‖ funded through

district, private, and federal funds to help out-of-school youth earn a high school diploma

or GED.

Numerous states offer online learning opportunities that, in many cases, allow students

who have dropped out to make up credits necessary for graduation. The largest online

school, the Florida Virtual School (FLVS), served more than 50,000 students in the

2006–07 school year. Nearly 20 percent of students taking courses through FLVS are

doing so for credit-recovery purposes. A number of online schools outside Florida have

adopted aspects of the FLVS curriculum, which has been recognized for its use of

diagnostic tests to streamline instruction.

The Los Angeles Unified School District offers high school credit-recovery courses that

combine traditional instruction and individually paced online learning.

The Johns Hopkins University’s Talent Development High Schools Program, discussed

in detail above in connection with prevention strategies, includes at least one

reengagement strategy—the use of alternative ―twilight schools,‖ schools within schools

that offer students the opportunity to attend during nontraditional hours.

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Federal Initiatives Related to Reengagement. In addition to its support of many of the

programs and initiatives described above, the federal government awards adult-education grants.

This funding is authorized by the Adult Education and Family Literacy Act and funds adult-

education programs, including those that prepare learners for the GED.

National Foundation and Organization Websites

Recent attention to the severity and impact of the dropout crisis has encouraged research and

reporting on the problem and potential solutions. Illinois policymakers may find the following

Web-based resources useful.

The Alliance for Excellent Education

http://www.all4ed.org

America’s Promise Alliance

http://www.americaspromise.org

Everyone Graduates Center at Johns Hopkins University

http://www.every1graduates.org

The Harlem Children’s Zone

http://www.hcz.org

Jobs for the Future

http://www.jff.org

The National Dropout Prevention Center/Network and the National Dropout Prevention Center

for Students with Disabilities

http://www.dropoutprevention.org

Philadelphia’s Project U-Turn

http://www.projectuturn.net

The Urban Institute’s Education Policy Center

http://www.urban.org/center/epc/index.cfm

Illinois Foundation and Organization Websites and Contact Information

Advance Illinois

http://www.advanceillinois.org

Big Brothers Big Sisters (18 agency offices statewide)

http://www.bbbs.org

The Consortium on Chicago School Research

http://ccsr.uchicago.edu

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Illinois Education Research Council

http://ierc.siue.edu

Illinois Virtual School

http://www.ilvirtual.org/

Job Corps Centers in Illinois

http://www.jobcorps.gov/centerlocations.aspx?statename=il

Lincoln’s ChalleNGe Academy

http://www.ngycp.org/site/state/il/

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Selected Resources

Alliance for Excellent Education (2008). Potential economic impacts of improved education on

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Alliance for Excellent Education (2009a). Federal high school graduation rate policies and the

impact on Illinois. Washington, DC: Author. Retrieved October 15, 2009, from

http://www.all4ed.org/files/Illinois_grp.pdf

Alliance for Excellent Education (August 2009b). The high cost of high school dropouts: What

the nation pays for inadequate high schools. Washington, DC: Author. Retrieved October

15, 2009, from http://www.all4ed.org/files/HighCost.pdf

America’s Promise Alliance. (2009). Dropout prevention [Website]. Retrieved October 15, 2009,

from http://www.americaspromise.org/Our-Work/Dropout-Prevention.aspx

Balfanz, R., Almeida, C., Steinberg, A., Santos, J., & Fox, J. H. (2009). Graduating America:

Meeting the challenge of low graduation-rate high schools. Boston: Jobs for the Future.

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Balfanz, R., Fox, J. H., Bridgeland, J. M., & McNaught, M. (2009). Grad nation: A guidebook to

help communities tackle the dropout crisis. Washington, DC: America’s Promise

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ion_020509.ashx

Berliner, B., Barrat, V. X., Fong, A. B., & Shirk, P. B. (2008). Reenrollment of high school

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056). Washington, DC: U.S. Department of Education, Institute of Education Sciences,

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Bridgeland, J. M., DiIulio, J. J. Jr., & Balfanz, R. (2009). On the front lines of schools:

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